No.  12. 


DEPARTMENT  OF  DOCKS  AND  FERRIES 

Pier  "A",  North  River 
NEW    YORK  CITY 


REPORT 

ON  THE 

Proposed  Plan  of  Operations  for  Jamaica 
Bay  Improvement 


SUBMITTED  BY 

CALVIN  TOMKINS 

Commissioner  of  Docks 


1911 


CD 


Digitized  by  the  Internet  Archive 
in  2013 


http://archive.org/details/reportonproposedOOnewy 


lEx  ICtbrts 


SEYMOUR  DURST 


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Report  on  the  Proposed  Plan  of 
Operations  for  Jamaica  Bay 
Improvement 


Submitted  by  CALVIN  TOMKINS,  Commissioner  of  Docks. 


New  York,  August  21,  1911. 

Hon.  William  J.  Gaynor, 

Mayor  of  the  City  of  New  York: 

Sir — Owing  to  the  magnitude  of  the  Jamaica  Bay  Improve- 
ment and  the  fact  that  the  whole  Bay  is  in  an  unimproved  state, 
with  little  access  to  any  of  the  main  channels,  and  since  the  Gov- 
ernment will  co-operate  to  a  certain  extent  with  the  City  in  the 
way  of  reimbursement  for  work  performed  by  the  City  in  the 
main  channels,  I  deem  it  expedient  to  obtain  all  the  advice  possible 
as  to  the  method  of  prosecuting  the  early  improvements. 

I  have,  therefore,  outlined  alternative  propositions  for  the 
first  development  at  Jamaica  Bay  in  order  that  the  members  of 
the  Sinking  Fund  Commission,  the  Board  of  Estimate  and 
Apportionment,  and  other  interested  bodies  may  become  familiar 
with  the  question. 

The  United  States  Government  has  adopted  the  main  chan- 
nel lines  only,  which  is  as  far  as  its  jurisdiction  extends.  This 
channel  is  shown  on  the  accompanying  map  "  B  "  colored  in  gray 
tint.  There  is  shown  on  map  "  B  "  a  tentative  layout  for  long 
piers  in  the  future,  and  for  a  marginal  way,  colored  in  pink, 
which  it  is  proposed  to  use  in  future  for  general  terminal,  ware- 


2 


! 


house,  railroad  and  factory  development,  all  under  the  control 
of  the  Commissioner  of  Docks. 

Proposition  Xo.  1  (Map  "A"). 

A  detailed  description  is  submitted  describing  Proposition  No. 
1,  together  with  an  exact  method  for  utilizing  the  existing  ap- 
propriation by  acquiring  property  in  three  definite  locations, 
selected  on  account  of  their  availability  in  relation  to  existing 
channels,  existing  railroads,  the  nearest  city  growth  of  Brooklyn, 
and  on  the  possibility,  through  working  out  this  plan,  of  receiv- 
ing by  reimbursement  a  large  amount  of  money  from  the  United 
States  Government  in  part  payment  for  main  channel  dredging. 

It  is  proposed  to  acquire  the  requisite  lands  at  these  locations, 
and  to  do  such  necessary  dredging,  pumping,  filling  and  bulkhead 
platform  construction  as  will  enable  the  City  to  provide  wharfage 
at  each  of  these  three  places. 

As  outlined  in  the  detailed  report  of  June  24,  1911,  marked 
"  A,"  submitted  with  estimates,  etc.,  the  order  of  procedure  is  to 
acquire  first  the  property  east  of  Canarsie  and  let  the  contract  for 
this  one  piece  of  work.  Plans  and  specifications  for  this  work 
are  now  ready  for  printing.  After  this  property  shall  be  acquired 
and  the  contracts  let,  an  important  guide  as  to  the  probable 
actual  cost  of  the  remaining  work  will  thus  have  been  obtained, 
and  contracts  may  then  be  let  for  the  other  two  locations. 

Proposition  Xo.  2  (Map  "  B  "). 

A  detailed  description  is  herewith  appended  which  describes 
a  method  for  early  improvement  in  Jamaica  Bay  by  acquiring 
certain  parcels  of  land  throughout  the  whole  of  Jamaica  Bay  at 
strategic  points,  leaving  the  remaining  areas,  shown  in  orange 
hatched  lines,  to  be  acquired  later,  thus  obtaining  for  the  City 
as  much  property  surrounding  Jamaica  Bay  as  possible  with  the 
funds  now  available. 

In  both  of  the  above  propositions,  the  estimate  is  tentative 
and  is  made  on  the  basis  of  the  best  data  now  obtainable  of  the 
cost  of  the  property.  In  case  the  figures  are  high,  this  will  be 
discovered  in  the  acquisition  of  the  first  property;  and  the  matter 
of  purchase  can  be  regulated  by  the  acquirement  of  less  prop- 
erty. If,  on  the  other  hand,  the  prices  are  low,  more  property 
can  be  acquired  or  more  of  the  balance  can  be  used  on  construc- 
tion at  some  place  to  be  definitely  decided  upon  later. 

The  spacious  areas  comprising  islands  and  channels  in  the 
interior  of  Jamaica  Bay,  inside  of  the  extensive  surrounding,  main 
channels,  have  not  been  considered  at  the  present  time.  Refer- 
ence is  again  made  to  some  of  the  suggestions  in  my  pamphlet 
of  April  20,  1910  (see  page  16  of  such  report),  to  the  effect  that, 


3 


after  the  main  channels  and  lands  shall  have  been  acquired,  and 
developed  to  some  extent,  these  interior  islands  are  susceptible  of 
development  for  a  free  port,  and  for  many  municipal  purposes, 
such  as  parking,  for  recreation  and  for  institutional  needs. 

It  is  important  to  conserve  and  develop  railroad  connections 
with  Jamaica  Bay.  The  Pennsylvania  Railroad,  enjoying  as  it 
does,  advantages  over  other  lines,  and  showing  a  willingness  to 
co-operate  with  the  City,  should  be  encouraged,  provided  that  its 
policy  shall  continue  to  be  a  liberal  one.  The  Brooklyn  Rapid 
Transit  Company  should,  in  the  same  way,  be  induced  to  outline 
a  policy  of  expansion  for  its  passenger  and  freight  lines.  Steps 
should  at  the  same  time  be  taken  by  the  City  as  soon  as  possible 
to  build  its  own  independent  marginal  road  at  Jamaica  BayNand 
a  city  railroad  connecting  this  with  the  South  Brooklyn  Terminal 
and  with  Flushing  Bay.  For  the  present,  rail  connections  with 
factory  sidings,  and  the  establishment  of  the  minimum  port 
freight  rates  are  the  essential  factors  for  stimulating  private  im- 
provements in  connection  with  city  development.  These,  with 
an  18-foot  channel,  and  supplemented  by  cheap,  sanitary  and 
aesthetic  residence  sites,  should  speedily  attract  capital,  industry 
and  population. 

The  City  should  ultimately  own  much  of  this  waterfront. 
Meanwhile,  if  these  plans  are  adopted,  it  will  be  in  a  position 
of  control.  By  co-operation  with  private  owners,  it  can  stimu- 
late private  improvements  by  undertaking  the  pumping  of  sand 
from  the  channels  over  private  lands,  thus  producing  a  revenue 
for  extensions  and  adding  new  City  assets  in  increased  taxable 
property. 

The  initial  dock  improvements  by  the  City  should  be  of  a 
cheap  and  temporary  character  so  as  to  stimulate  private  develop- 
ment with  the  minimum  of  public  expenditure.  This  will  allow 
permanent  improvements  to  be  made  later  when  revenue  will 
begin  to  accrue  from  use  and  at  a  time  when  the  ultimate  uses 
of  the  property  shall  have  been  established,  so  that  permanent 
improvements  may  be  made  where  actually  needed,  and  in  a  man- 
ner best  to  adapt  the  waterfront  to  the  ultimate  needs  of  the 
back  lands — that  is,  all  of  Long  Island. 

No  street  or  railroad  or  building  line  plan  for  the  public 
,  marginal  strip  about  the  bay  is  shown  at  present,  since  the  experi- 
ence of  the  future  will  best  determine  the  nature  of  the  permanent 
plan.  General  industrial  occupation  is  contemplated  for  a  gen- 
eration or  more,  after  which,  if  the  possibility  of  maintaining 
a  deep  channel  to  the  sea  shall  have  been  demonstrated,  a  frontal 
port  may  then  be  developed  and  primary  uses  may.  be  expected 
to  give  way  to  commercial  occupation.  But  the  first  practical 
effect  of  providing  a  moderate  depth  channel  and  rail  facilities 
for  the  Jamaica  Bay  waterfront  will  be  to  accelerate  the  building 
up  of  this  part  of  the  city  as  a  consequence  of  the  availability  of 


4 


cheap  sites,  cheap  building  materials  as  well  as  coal  and  other  sup- 
plies constituting  the  raw  materials  for  manufactures.  The  im- 
provement of  Newtown  and  Gowanus  Creeks  many  years  since 
subserved  a  similar  purpose. 

As  the  sand  fill  takes  place  along  the  bay  front,  the  City  will 
begin  to  grow  from  the  bay  inland  as  well  as  from  within  out- 
ward, and  the  demand  for  further  improvements  will  become  in- 
sistent from  both  sides.  As  local  manufactures  increase,  the  op- 
portunities for  establishing  a  commercial  center  will  become  more 
and  more  apparent,  and  the  150  additional  miles  of  harbor  water- 
front here  available  can  be  steadily  developed  in  such  a  manner 
as  to  be  of  incalculable  benefit  to  the  City. 

The  Back  Lands. 

The  City  should  promptly  provide  a  development  plan  for  the 
lands  back  of  the  marginal  strip.  Gradients,  street  lines,  sewers, 
sites  for  numerous  parks  and  playgrounds,  school  sites  and  all  the 
requisites  necessary  for  the  economic  convenience  of  a  great  in- 
dustrial population  should  now  be  anticipated.  Mr.  Nelson  P. 
Lewis,  Chief  Engineer  of  the  Board  of  Estimate  and  Apportion- 
ment, has  suggested  that  after  establishing  the  lines  of  the  main 
arteries  of  approach,  it  might  be  desirable  for  the  City  to  permit 
of  the  extension  of  local  sporadic  developments  following  the 
custom  of  German  municipalities,  instead  of  imposing  upon  the 
whole  district  the  rectangular  street  policy  which  has  heretofore 
controlled  the  development  of  the  City. 

I  believe  the  Park  Department  and  the  Engineer  of  the  Board 
of  Estimate  and  Apportionment  should  be  intimately  associated 
in  the  development  of  this  vast  basin  within  the  City  boundaries, 
at  present  a  waste  of  marsh  and  shallow  water.  The  time  has 
now  arrived  when  the  advice  of  outside  municipal  experts  may 
also  advantageously  be  availed  of  as  a  check  upon  the  opinions 
of  the  Dock  Department  and  of  other  City  departments. 

No  expensive  and  intricate  problems  of  reorganization  are  to 
be  encountered  in  this  almost  undeveloped  district  of  the  City. 

Financial. 

The  City  has  provided  $1,000,000  for  starting  the  Jamaica 
Bay  project.  In  conformity  with  the  general  policy  of  the  Dock 
Department  of  making  waterfront  improvements  pay  for  them- 
selves out  of  increment  in  values  created,  I  believe  it  should  try  to 
avoid  asking  for  further  appropriations  if  it  is  possible  to  do  so 
without  prejudice  to  the  ultimate  acquisition  of  the  bay  front. 
This  may  not  be  possible  and  an  additional  appropriation  may 
prove  necessary ;  but  I  believe  marginal  lands  as  they  are  filled 


5 


can  be  advantageously  leased  for  say,  25-year  terms,  with' one  or 
two  10-year  renewals  based  on  the  then  appraised  value.  Such 
leases,  I  am  inclined  to  think,  should  be  made  on  the  basis  of 
interest  and  amortization  of  the  cost  of  the  land  and  improve- 
ments, with  possibly  an  allowance  for  the  loss  of  taxes  on  present 
value.  Leases  on  such  a  basis  would,  I  'believe,  be  cheap  and 
attractive  for  industrial  purposes,  considering  the  certainty  of  the 
railroad  and  waterfront  improvements,  which  would  be  made 
available  for  every  factory  site.  The  moderate  rentals  would 
also  tend  temporarily  to  keep  down  the  speculative  value  of 
marginal  lands  not  already  acquired  by  the  City.  This  would 
facilitate  the  City's  acquisition  of  the  same ;  and  as  rapidly  as 
leases  were  made  on  this  basis  their  capitalized  value  would 
release  a  corresponding  amount  of  capital  from  the  City's 
debt  limit,  thus  permitting  a  progressive  acquisition  of  lands 
and  extension  of  public  improvements.  The  fact  that  the 
City  now  controls  most  of  the  riparian  lands  virtually  gives 
it  control  of  privately  owned  back  lands,  since  these  lands  can 
only  be  reclaimed  by  pumping  sand  from  the  bay  or  basin  fronts. 
The  sand  dredged  from  the  outside  channel  to  the  bulkhead  line 
will  be  required  to  fill  the  strip  of  bay  front  property  over  which 
the  City  should  always  retain  control.  The  private  back  lands 
beyond  must  also  be  filled  in  by  pumping.  Sand  fill  for  this 
purpose  can  be  dredged  from  other  parts  of  the  bay  or  conveyed 
from  ocean  and  harbor  dr edgings,  in  dump  scows,  to  pockets 
along  the  bulkhead  line  and  pumped  thence  for  a  distance  of 
nearly  a  mile  back.,  as  is  now  done  at  Newark,  N.  J.,  at  Rotter- 
dam, and  elsewhere. 

AYhen  plans  for  outlining  the  limit  of  control  by  the  De- 
partment of  Docks  shall  have  been  finally  decided  upon  and 
adopted,  it  will  not  only  permit  the  City  to  undertake  actual 
work,  but  will  make  investors  and  prospective  tenants  more  confi- 
dent and  will  also  actuate  (present  local  private  interests  to  improve 
their  property.  Already  much  of  the  sewer  and  street  work  of 
the  adjoining  boroughs  is  being  advanced,  using  the  tentative 
presentation  of  Dock  Department  lines  as  their  guide.  Many 
private  owners  are  starting  improvements  under  permits  from 
the  Department,  accepting  these  lines  as  those  of  ultimate  con- 
trol. Ferry  franchises  for  service  between  points  in  Jamaica  Bay 
are  being  applied  for  and  several  have  already  been  granted. 
Private  enterprise  is  meeting-  us  more  than  half  way.  Unless  the 
City  is  to  obstruct  instead  of  forward  its  own  development,  it 
must  act  at  once. 

The  opportunity  for  private  gains  in  real  estate  development 
will  be  far  greater  if  the  City  shall  control,  co-ordinate  and  put 
to  their  best  uses  the  marginal  lands  about  the  bay. 

The  development  of  Jamaica  Bay  should  not  be  considered 
wholly  as  a  matter  local  to  New  York  City,  or  as  an  adjunct  to 


6 


the  Boroughs  of  Brooklyn  and  Queens  only,  but  as  the  westerly 
port  of  Long  Island,  which  will  be  of  inestimable  value  in  the 
development  of  the  wrhole  island,  the  future  of  which  will  also 
largely  depend  upon  the  continuation  of  the  progressive  policy 
inaugurated  'by  the  Pennsylvania  Railroad  Company. 

Respectfully  submitted, 

CALVIN  TOMKINS, 

Commissioner  of  Docks. 


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Proposed  Plan  of  Operations  for  Jamaica  Bay  Improvement, 

Hox.  Calvin  Tomkins, 

Commissioner  of  Docks: 

Sir — I  'beg  to  submit  herewith  an  outline  for  the  plan  of 
operations  in  carrying  out  the  first  step  of  Jamaica  Bay  Improve- 
ment. 

The  field  work  in  the  west  end  of  the  Bay,  including  all  the 
mainland  from  the  trestle  westward  and  the  mainland  and  islands 
south  of  Bergen  Beach  is  now  practically  completed ;  and  the 
work  from  Fresh  Creek  westward  is  almost  entirely  plotted  on 
a  scale  of  100-feet  to  the  inch  and  reproduced  on  four  large 
maps  on  a  scale  of  200  feet  to  the  inch;  four  tracings  have  been 
prepared  covering  four  points  at  which  work  can  be  commenced, 
and  one  of  these  covering  the  area  between  Canarsie  and  Fresh 
Creek  is  completed  with  soundings  out  from  the  shore  to  a 
distance  500  feet  south  of  the  established  channel  line  and  sound- 
ings and  levels  in  and  adjoining  Fresh  Creek  itself. 

I  have  prepared  maps  on  a  small  scale  showing  the  different 
plans  of  operation  and  different  areas  for  improvement  at  Fresh 
Creek,  Paerdegat  Basin  and  between  Mill  Basin  and  Bergen 
Beach  and  the  channel  approaches  thereto. 

The  plan  of  operation  that  seems  to  me  to  accomplish  the 
maximum  of  benefit  with  the  $950,000  available,  comprises  the 
immediate  improvement  in  the  matter  of  dredging  approaches 
and  filling  at  three  different  points  in  the  immediate  vicinity  of 
Canarsie  and  Bergen  Beach,  as  follows : 

Proposed  Plans  for  Immediate  Improvement. 

PROPOSITION  NO.  1  (MAP  "A"). 

The  operations  for  proposed  immediate  improvement  con- 
template, 

First — The  acquisition  of  the  necessary  property. 

Second — Dredging  under  contract  by  pumping  and  filling. 

Third — The  construction  under  contract  of  temporary  bulk- 
head platforms  at  three  different  points  easily  and  readily  ac- 
cessible both  from  Canarsie  and  Bergen  Beach  by  land,  and  from 
the  Bay  itself  by  dredging  short  channels  from  the  present  main 
channel  in  this  locality. 

These  three  points  are  as  follows : 

No.  1.    Canarsie  to  Fresh  Creek — 

Between  the  present  existing  bulkhead  at  Canarsie  eastward 
to  Fresh  Creek  Basin,  where  it  is  proposed  to  develop  the  west- 
erly side  of  this  basin  for  a  distance  of  3.700  feet  back  of  the  main 
proposed  bulkhead  line  of  Jamaica  Bay. 


8 


This  locality  is  recommended  for  development  as  it  will  form 
an  extension  of  a  section  already  developed  to  some  extent  by 
private  enterprise ;  and  will  provide  3,700  feet  of  immediate 
wharfage  with  about  2,500  feet  of  bulkhead  from  which  several 
piers  may  extend. 

The  development  of  this  section  will  require  the  acquisition 
of  about  70  acres  of  upland  indicated  on  the  map  submitted 
herewith  by  cross-hatching  in  black,  and  about  30  acres  of  land 
under  water  covered  by  State  grants  indicated  on  the  accompany- 
ing map  also  bv  cross-hatching  in  black  in  the  opposite  direction. 
This  acquisition  of  property  will  cost  about  $300,000. 

It  will  also  require  the  dredging,  by  pumping,  of  an  approach 
from  the  present  main  channel  for  a  width  of  300  feet  and  about 
1,500  feet  in  length  to  a  depth  of  10  feet,  to  form  a  connection 
between  the  present  main  channel  and  the  future  main  channel, 
or  about  100.000  cubic  yards ;  the  dredging,  by  pumping,  within 
the  area  of  the  future  main  channel  for  a  length  of  about  3,000 
feet  and  a  width  of  500  feet  for  a  depth  of  15  feet,  comprising 
about  800.000  cubic  yards ;  the  dredging,  by  pumping,  of  a  chan- 
nel for  the  Fresh  Creek  Basin  for  a  length  of  about  2,700  feet 
and  a  width  of  300  feet  to  a  depth  of  10  feet,  comprising  250.000 
cubic  yards :  and  an  added  channel  within  the  Fresh  Creek  Basin 
for  a  length  of  2,000  feet  and  a  width  of  100  feet  to  a  depth  of 
10  feet,  comprising  about  50,000  cubic  yards. 

The  cost  of  this  dredging  is  estimated  at  about  10 
cents  per  cubic  yard  in  the  basin,  and  12  cents 
per  cubic  yard  for  the  channel  dredging  outside 
of  the  basin.  The  total  dredging  for  this  loca- 
tion is,  therefore,  800,000  cubic  yards  of  main 


channel  dredging  at  12  cents.  ..."   $96,000  00 

For  which  it  is  expected  the  Federal  Government 
will  reimburse  the  City  at  the  rate  of  8  cents 

per  cubic  yard   64,000  00 

Net  cost  of  main  channel  dredging   $32,000  00 

Dredging  approach,  100,000  cubic  vards  at  12  cents 

per  cubic  yard  '.   12,000  00 

Dredging  Fresh  Creek  Basin,  300,000  cubic  vards  at 

10  cents  per  cubic  yard   30,000  00 

Total  net  cost  of  dredging   $74,000  00 


It  is  estimated  that  this  dredging,  indicated  in  "  yellow  "  on 
the  accompanying  map,  will  provide  the  necessary  filling  indi- 
cated in  "  red  "  on  the  accompanying  map,  to  a  grade  of  about 
10  feet  above  mean  low  water  for  the  area  comprising  the  1,700 
feet  in  width  of  marginal  way  along  the  main  bulkhead  line  of 
Jamaica  Bay  for  a  length  of  about  2.000  feet  and  the  300-foot 
wide  irarsginal  way  along  the  westerly  side  of  Fresh  Creek  Basin 


9 


for  a  length  of  about  2,000  feet;  making  in  all  a  length  of  3,700 
feet  along  the  westerly  side  of  Fresh  Creek  Basin. 

This  improvement  provides  for  about  3,700  linear  feet  of 
platform,  of  which,  it  is  recommended  that  not  more  than  500 
feet  be  built  at  once,  pending  the  demand  for  a  greater  length. 
This  will  cost  for  500  linear  feet  of  platform  at  $30  per  linear 
foot,  about  SI 5,000. 

Summary. 

Acquisition  of  Property   $300,000  00 

Dredging    74,000  00 

Bulkhead  Platform   15,000  00 

Total  for  Canarsie  to  Fresh  Creek.  .  .    $389,000  00 
—or  say.  S400,000. 

No.  2.    Canarsie  Beach  Park  to  Paerdegat  Basin — 

This  particular  locality  is  selected  because  of  its  immediate 
accessibility  from  Canarsie,  and  contemplates  commencement  of 
operations  in  the  matter  of  rilling  from  the  westerly  side  of  the 
mouth  of  Indian  Creek  which  forms  a  boundary  along  the  west- 
erly side  of  the  mouth  of  Canarsie  Beach  Park.  The  reason  for 
commencement  at  the  westerly  side  of  this  creek  is  that  the 
present  mussel,  oyster  and  clam  canning  industries  at  Canarsie 
may  be  undisturbed. 

The  acquisition  of  property  for  this  location  comprises  three 
acres  of  upland  and  seven  acres  of  land  under  water  covered  by 
State  grants.    The  estimated  cost  of  this  acquisition  is : 

For  the  upland,  3  acres  at  $4,000.   $12,000  00 

Land  under  water.  7  acres  at  $2,000   14,000  00 

Total  for  property   $26,000  00 

The  dredging  will  comprise  an  extension  of  the  main  chan- 
nel dredging  already  described  for  the  Canarsie  to  Fresh  Creek 
Basin  improvement  for  a  length  of  about  4,500  feet  with  a  width 
of  500  feet  to  a  depth  of  15  feet  at  mean  low  water.    The  esti- 


mated cost  for  which  is: 

1,140,000  cubic  yards  at  12  cents   $136,800  00 

For  which  it  is  expected  the  Federal  Government 
will  reimburse  the  Citv  at  the  rate  of  8  cents  per 
cubic  yard.  or..   91,200  00 

Xet  cost  to  City  for  this  dredging   $45,600  00 

Dredging  a  channel  in  Paerdegat  Basin  for  a  length 
of  about  3.000  feet,  and  a  width  of  300  feet  to  a 
depth  of  10  feet,  amounting  to  200,000  cubic 
yards,  at  10  cents   20,000  00 

Xet  cost  of  dredging   $65,600  00 


10 


It  is  estimated  that  this  dredging,  indicated  in  yellow  on  the 
accompanying  map,  will  provide  filling  for  the  area  indicated  in 
red,  comprising  about  1,500  feet  of  marginal  way  for  a  width  of 
1,700  feet  along  the  main  bulkhead  line  of  Jamaica  Bay  and  300 
linear  feet  for  a  width  of  300  feet  along  the  easterly  side  of 
Paerdegat  Basin,  making  in  all  a  length  of  2.000  feet  along  the 
easterly  side  of  Paerdegat  Basin. 

This  improvement  provides  for  2,000  linear  feet  of  bulkhead 
platform  in  Paerdegat  Basin,  500  feet  of  which  is  recommended 
be  built  at  the  present  time,  pending  demand  for  more  extensive 
wharfage.    The  cost  of  which  is  estimated : 


500  feet  o-f  bulkhead  platform  at  $30   $15,000  00 


Summary. 

Acquisition  of  Property   $26,000  00 

Net  Cost  of  Dredging   65,600  00 

Bulkhead  Platform   15,000  00 

Total  Estimated  Cost   $106,600  00 


No.  3.  Bergen  Beach  to  Mill  Basin — 

This  locality  is  particularly  recommended  for  immediate  im- 
provement because  of  its  direct  accessibility  from  the  Bergen 
Beach  section.    The  improvement  will  require : 

The  acquisition  of  about  50  acres  of  upland  at  an 

estimated  cost  of  $1,000  per  acre   $50,000  00 


Dredging  a  channel  of  approach  about  1,500  feet 
Long,  300  feet  wide,  to  a  depth  of  15  feet,  to 
form  a  connection  between  the  present  Jamaica 
Bay  channel  and  the  future  main  channel,  com- 
prising about  150,000  cubic  yards  at  12  cents.  .     $18,000  00 
Dredging  the   future  main  channel 
for  a  length  of  4,700  feet  and  a 
width  of  500  feet,  to  a  depth  of 
15  feet,  to  form  a  connection  be- 
tween Paerdegat  Basin  and  Mill 
Basin,  comprising  1,160,000  cubic 


yards,  at  12  cents   $139,200  00 

Of  which,  it  is  expected,  that  the 
Federal  Government  will  re- 
imburse the  City  at  the  rate  of 
8  cents  per  cubic  yard   92,800  00 


Net  cost  of  main  channel  dredging. 


46,400  00 


11 


Brought  forward   $64,400-00 

•Dredging  the  channel  in  Mill  Basin  for  a  length  of 
about  3,000  feet  and, a  width  of  300  feet  to  a 
depth  of  10  feet,  comprising  300,000  cubic  yards, 

at  10  cents  "   30,000  00 


Total  Estimated  Net  Cost  of  Dredging.  .     $94,400  00 


It  is  estimated  that  this  dredging  indicated  in  "  yellow  "  on  the 
accompanying  map  will  provide  filling  for  the  area  indicated  in 
"  red  "  forming  a  marginal  way  1,700  feet  wide  for  a  length  of 
3,000  feet  along  the  main  bulkhead  line  of  Jamaica  Bay,  and  at 
the  same  time  forming  a  length  of  about  1,800  feet  along  the 
northerly  side  of  Mill  Basin. 

This  scheme  provides  for  a  length  of  about  1,800 
feet  of  bulkhead  platform  along  the  northerly 
side  of  Mill  Basin,  of  which  it  is  recommended 
that  not  more  than  500  feet  be  built  at  the  pres- 
ent time,  pending  the  demand  for  increased 
wharfage  of  this  character.   The  estimated  cost 


is,  500  linear  feet  of  platform  at  $30   $15,000  00 


Summary. 

Acquisition  of  Property   $50,000  00 

Dredging   '   94,400  00 

Platform   15,000  00 


Total   SI  59.400  00 

—or  say,  $160,000. 

General  Summary  of  Estimated  Cost. 

Location  No.  1.    Between    Canarsie    and  Fresh 

Creek  Basin   $400,000  00 

Location  No.  2.    Between  Canarsie  and  Paerde- 

gat  Basin   106.600  00 

Location  No.  3.    Between  Bergen  Beach  and  Mill 

Basin    160.000  00 


$666,600  00 

To  which  should  be  added  for  immediate  expendi- 
ture the  amount  which  has  been  deducted  in  the 
foregoing  estimates  for  reimbursements  by  the 
Federal  Government  for  dredging  in  the  main 
channel,  amounting  to   $248,000  00 


Total  Cost  Chargeable  Immediatclv  to  the 

$950,000  Appropriation   $914,000  00 


12 


When  the  Federal  Government  shall  reimburse  the  City  for 
the  dredging  in  the  main  channel,  amounting  to  $248,000,  this 
money  can  be  used  for  extending  the  main  channel,  as  provided 
above,  500  feet  in  width  and  15  feet  in  depth  at  mean  low  water, 
from  Mill  Basin  to  Barren  Island. 

The  estimated  cost  of  this  work  is  about  1.000,000  cubic  vards 
of  dredging  at  12  cents,  $120,000. 

About  60  acres  of  upland,  at  $500  per  acre,  would  have  to  be 
acquired,  amounting  to  $30,000. 

With  further  reimbursement  by  the  Federal  Government  for 
this  extended  main  channel  dredging,  additional  main  channel 
dredging  could  be  undertaken,  etc. 

This  dredging  is  indicated  on  the  accompanying  map  in 
"  brown  color  "  and  the  material  excavated  will  fill  an  area  in 
the  marginal  -treet  adjoining  proposed  bulkhead  line  about  400 
feet  in  width. 

As  stated  before,  the  improvement  of  these  three  localities 
with  connecting  channels  will  provide  extensive  wharfage  /oom 
of  a  nature  that  may  be  expected  for  immediate  demand,  with  all 
the  facilities  absolutely  ready  for  further  and  more  intense  de- 
velopment in  the  nature  of  piers  with  warehouse  accommodations, 
etc..  as  the  demand  and  requirements  for  this  particular  charac- 
ter of  wharfage  room  arises. 


Xote. 


Property. 

Dredging 
and  Pumping. 

Bulkheads. 

Allowed  by  Board 

of  Estimate  

Estimate  submitted 

S750.000  00 
376.000  00 

$150,000  00 
233,000  00 

$50,000  00 
45,000  00 

Therefore,  to  do  the  work  as  outlined,  it  would  be  necessary 
to  request  the  Board  of  Estimate  to  transfer  $100,000  from 
C.  D.  D.  No.  25  to  line  Xo.  24  (see  copy  of  resolution  adopted 
by  the  Commissioners  of  the  Sinking  Fund,  January  11,  1911, 

at  end  of  report"). 


1.1 


PROPOSITION  NO.  2  (MAP  "  B  "). ' 

Expenditure  for  the  First  Improvement  of  Jamaica  Bay  by 
the  Acquisition  of  Property  at  a  Number  of  Places  in 
Different  Parts  of  the  Bay. 

Instead  of  spending  most  of  the  available  money  for  the 
Jamaica  Bay  Improvement  by  acquiring  property  and  dredg- 
ing or  pumping  at  one  or  two  specific  places,  this  map  is  sub- 
mitted, showing  where  a  number  of  properties  may  be  acquired 
at  different  parts  of  Jamaica  Bay  supposed  to  be  at  strategic 
points.  This  whole  assumption  for  the  acquisition  of  property 
in  Jamaica  Bay  is  made  with  the  supposition  that  the  City  owns 
all  the  land  under  water,  and  in  order  to  carry  >i;t  the  improve- 
ments as  outlined  on  the  accompanying  map,  the  acquisition  of 
property  for  the  various  parcels  only  calls  for  the  acquisition  of 
the  upland,  which  is  outlined  by  black  hatched  lines. 

Parcel  Xo.  1. 

By  acquiring  the  small  amount  of  islands  between  the  north- 
erly part  of  Barren  Island  and  the  Mill  Creek  Basin,  which, 
figured  roughly  at  $500  an  acre  would  cost  about  $30,000.  all 
of  the  property  which  is  needed  for  the  construction  of  the  im- 
provement from  Barren  Island  to  Mill  Basin  could  be  acquired. 

Parcel  Xo.  2. 

By  acquiring  the  property  from  Mill  Creek  Basin  to  Bergen 
Beach,  the  upland  for  which  is  estimated  at  about  $1,000  per 
acre  or  a  total  cost  of  about  $50,000,  this  waterfront  could  be 
secured. 

Parcel  Xo.  3. 

By  acquiring  the  upland  in  Parcel  Xo.  3,  west  of  Canarsie 
proper,  estimated  at  $3,000  per  acre  or  a  total  cost  of  about 
$26,000,  all  of  the  property  necessary  for  the  construction  of  the 
whole  corner  of  this  improvement  could  be  acquired. 

Parcel  Xo.  4. 

By  acquiring  the  property  hatched  in  black  at  about  $4,000 
an  acre,  or  a  total  cost  of  about  $300,000,  all  the  property  neces- 
sary for  the  control  of  the  waterfront  from  the  easterly  side  of 
Canarsie  to  and  including  the  mouth  of  the  Fresh  Creek  Basirt 
could  be  acquired. 


14 


Parcel  No.  5. 

In  the  same  way,  the  acquisition  of  property  shown  cross 
hatched  in  black  at  $1,000  an  acre  or  about  $30,000,  would  ac- 
quire all  the  property  needed  near  the  mouth  of  the  Spring  Creek 
Basin,  and  with  Parcel  No.  4  would  take  all  the  property  prac- 
tically from  Canarsie  to  about  3,000  feet  east  of  the  Spring- 
Creek  Basin. 

Parcel  No.  6. 

By  acquiring  the  property  cross  hatched  in  black  at  about 
$325  an  acre  or  a  cost  of  $20,000,  it  would  secure  all  the  neces- 
sary property  between  the  Bergen  Basin  and  Cornell  Basin. 

Parcel  No.  7. 

By  acquiring  all  the  property  cross  hatched  in  black  at  $1,000 
an  acre  or  about  $ 100,000,  it  would  secure  all  the  property  nec- 
essary to  build  the  whole  head  of  the  Cornell  Basin.  The  head 
of  this  Basin  brings  the  waterfront  near  the  growing  develop- 
ment in  Queens  and  railroad  connections  from  the  east  towards 
the  Long  Island  Railroad. 

Parcel  No.  8. 

By  acquiring  the  property  shown  in  black  hatching  on  the 
north  side  of  the  "  Head  Bay  Basin  "  and  a  little  on  the  south 
side  at  $150  an  acre,  or  a  total  cost  of  about  $50,000,  it  would 
enable  the  Department  to  build  all  of  the  waterfront  between 
the  Mott  Basin  and  the  northerly  side  of  the  "  Head  Bay  Basin." 
The  head  of  the  Bay  Basin  as  laid  out  on  this  map  will  enable 
the  City  to  prosecute  a  mammoth  waterfront  and  terminal  de- 
velopment at  the  head  of  the  extreme  end  of  Jamaica  Bay,  which 
will  be  susceptible  of  direct  connection  with  the  Long  Island 
Railroad  Company  and  will,  no  doubt,  be  an  admirable  place  for 
some  great  development  in  the  future. 

Parcel  No.  9. 

The  acquisition  of  a  small  amount  of  property  as  outlined 
in  black  hatching  in  the  Conch  Basin,  at  about  $750  an  acre 
or  a  total  cost  of  about  $100,000,  will  enable  the  City  to  con- 
struct the  whole  of  the  Conch  Basin  development.  This  basin 
will  be  no  doubt  a  valuable  asset  in  the  future  for  the  develop- 
ment of  the  needs  of  local  commerce  and  wharfage,  and  will 
no  doubt  be  ample  to  supply  all  the  needs  of  the  Far  Rock- 
away  sections  proper  for  the  future. 

Parcels  Nos.  10,  11  and  12. 

These  parcels  are  selected  along  the  northerly  shore  of  the 
Rockaway  Beach  peninsula  on  the  southerly  part  of  Jamaica 


15 


Bay,  simply  as  three  locations  to  be  acquired  in  order  that  they 
.may  serve  as  distributing  points  for  local  wharfage  and  public 
landings.  The  question  of  title  at  these  places  is  vague,  and  at 
the  present  time  it  appears  that  most  of  the  property  needed  for 
several  hundred  feet  of  wharfage  at  each  location,  could  be  ac- 
quired by  the  expenditure  of  very  little  money,  perhaps  in  some 
places  only  the  wharfage  rights  being  necessary  to  acquire. 
Therefore,  no  fixed  sum  is  stated  for  this  purpose. 

The  selection  of  the  various  parcels  from  1  to  9  have  been 
made  with  only  a  regard  to  their  value  as  general  factors  in  the 
development  of  Jamaica  Bay,  namely,  their  availability  now  and 
in  the  future,  their  adaptability  to  railroad  connections  at  the 
present  time  and  in  the  future,  and  it  seems  that  they  would 
be  the  strategic  points  in  the  acquisition  of  real  estate  at  the 
present  time. 

The  remaining  desirable  waterfront  along  the  northerly  part 
of  Jamaica  Bay.  which  has  not  been  noted  for  present  acquire- 
ment, is  shown  in  orange  hatching  on  Map  "  B."  It  is  the  in- 
tention to  take  up  the  acquisition  of  these  properties  at  a  later 
date  after  the  more  important  points  have  been  acquired. 

If  the  City  could  acquire  the  areas  as  outlined  in  black 
hatched  lines,  and  the  contention  that  the  City  already  owns  the 
land  under  water  is  correct,  these  parcels  combined  would  place 
the  City  in  control  of  almost  all  of  the  better  class  of  water- 
front on  the  northerly,  westerly  and  easterly  sides  of  Jamaica 
Bay,  all  of  which  is  susceptible  to  railroad  connections  and  street 
connections  to  the  City. 

The  matter  of  valuation  is  very  vague,  and  our  information 
up  to  the  present  time  is  very  meagre  upon  this  subject.  The 
Jamaica  Bay  Commission  used  a  basis  of  valuation  of  about 
$1,000  per  acre  everywhere.  These  prices  submitted  have  been 
arrived  at  after  inquiry  has  been  made  from  every  available 
source,  and  with  some  idea  as  to  the  assessed  valuations.  If 
all  the  propertv  could  be  acquired  at  the  prices  named,  about 
$700,000  or  $800,000  would  have  to  be  expended.  The  balance 
could  then  be  used  as  a  beginning  in  developing  some  one  or 
two  points,  to  be  decided  upon  later,  by  pumping  and  building 
bulkheads. 

If,  on  the  other  hand,  the  prices  are  too  low.  then  a  lesser 
amount  of  land  would  necessarily  be  acquired  under  the  exist- 
ing appropriation,  this  to  be  found  out  as  soon  as  real  opera- 
tions are  commenced  towards  acquiring  this  property. 

Very  respectfully, 

Charles  W.  Staxiford. 

Chief  Engineer. 


16 


(Copy) 

Commissioners  of  the  Sinking  Fund  of  The  City  of 
New  York. 

Resolved,  That  pursuant  to  the  provisions  of  Section  180 
of  the  Greater  New  York  Charter,  the  Commissioners  of  the 
Sinking  Fund  hereby  recommend  to  the  Board  of  Estimate  and 
Apportionment  that  the  Comptroller  be  authorized  to  issue  from 
time  to  time  as  may  be  required  corporate  stock  of  The  City  of 
New  York  to  an  amount  not  exceeding  nine  hundred  and  fifty 
thousand  dollars  ($950,000)  the  proceeds  whereof  to  be  applied 
to  the  purposes  and  uses  of  the  Department  of  Docks  and  Fer- 
ries in  the  sums  and  for  the  purposes  as  hereinafter  indicated : 

1.  For  the  construction  of  a  section  of  bulkhead,  sand  dyke  or 

rip-rap  retaining  wall  intended  to  retain  dredged  material 
to  be  taken  from  the  main  channel  or  entrance  channel 
of  Jamaica  Bay,  such  structure  or  structures  to  be  located 
along  the  section  or  sections  of  proposed  bulkhead  line 
between  Spring  Creek  Basin  and  the  termination  of  the 
bulkhead  at  the  point  of  Barren  Island,  $50,000. 

2.  For  dredging  in  the  main  channel  in  Jamaica  Bay  between 

Spring  Creek  Basin  and  the  southeasterly  point  of  Bar- 
ren Island,  contingent  upon  the  execution  of  a  contract 
with  the  United  States  Government  through  which  pro- 
vision shall  be  made  for  the  reimbursement  of  The  City 
of  New  York' by  the  United  States  Government  for  all 
or  a  part  of  the  cost  of  said  dredging,  $150,000. 

3.  For  the  acquisition  of  land^s  located  in  or  on  Jamaica  Bay 

needed  for  filling  purposes,  the  precise  location  of  such 
lands  to  be  determined  upon  in  the  future  by  the  Com- 
missioner of  Docks  acting  co-ordinately  with  the  Com- 
missioners of  the  Sinking  Fund,  $750,000. 
— provided,  however,  that  no  obligation  shall  be  incurred  by 
contract  or  otherwise  against  the  appropriations  herein  pre- 
viously recommended  until  such  time  as  the  Commissioner  of 
Docks  has  adopted  and  the  Commissioners  of  the  Sinking  Fund 
have  approved  the  modified  plan  for  the  improvement  of  the 
waterfront  of  Jamaica  Bay  now  under  consideration  by  the 
War  Department  of  the  United  States. 

A  true  copy  of  resolution  adopted  by  the  Commissioners  of 
the  Sinking  Fund  January  11.  1911. 

Jno.  Korb,  Jr., 

Secretary  pro  tern. 


M.  B.  Brown  Printing  &  Binding  Co.,  49-57  Park  Place,  N.  Y. 
2967-' 11-2000 


